Illegal Migration Bill

Baroness Hamwee Excerpts

Consideration of Commons amendments
Wednesday 12th July 2023 Lords Chamber

[Lord Randall of Uxbridge (Con)]

My Lords, I shall speak briefly to my Motion P, to which the Minister referred. I should refer to my interest as a deputy chairman of the Human Trafficking Foundation. Perhaps it should be called not the Human Trafficking Foundation but the “modern slavery foundation”, because there is a difference with human trafficking, which is what I think stop the boats is all about. By dint of modern slavery, everybody who is enslaved and arrives in this country has come in illegally. Nobody comes in legally for modern slavery.

I am very disappointed with this Bill. However, I am a pragmatist. Years in retail taught me that sometimes you cannot have everything you want. So when my right honourable friend Theresa May spoke so eloquently and voted against the Government—and I can say as a former Deputy Chief Whip that that was only the second time she has ever voted against the Conservative Whip, which tells you something; you could not wish for a more loyal person—she did so because, as the noble Lord, Lord Hunt of Kings Heath, just said, it is not a great Bill in respect of modern slavery.

However, my noble friend and my right honourable friend down the other end in the other place made some concessions about what they would put in the guidance. My Motion basically asks that those concessions, that guidance, be put in the Bill. I would have preferred my original words—I would have preferred all sorts of things—but in order to make sure that we can get something done for the victims of this horrendous, heinous crime, if the Minister does not have a damascene conversion, when the time comes, I will test the opinion of the House.

[Baroness Hamwee (LD)]

My Lords, from these Benches, I cannot express strongly enough our huge disappointment about what is happening with the Modern Slavery Act. I very much agree with everything that the noble Lord, Lord Hunt, said. The Minister talked about “opportunities to misuse”, when it is the Home Office which approves the first responders who have to get possible victims of slavery into the NRM in the first place. He talked about enabling co-operation but, with what most of the people in this situation will have gone through, 30 days is simply insufficient for them to be able to bring themselves to co-operate with an authority figure in a foreign country when they are still worried about what their trafficker might do when he finds them and about what they will do if they have to try to get away from the system. It is simply not enough.

To co-operate requires support. That, in turn, requires trust, and that, in turn, requires time. Statutory guidance will of course be welcome. But only today I and other noble Lords received a briefing from the Rights Lab at the University of Nottingham on government commitments relating to Part 5 of the 2022 Act—the modern slavery part—analysing whether they had been met, partially met or not met at all. It did not make for very happy reading. It is a shame that one has to say that. We support the amendment of the noble Lord, Lord Randall. We wish that there were more coming before the House tonight that we could support too.

[Lord Coaker (Lab)]

My Lords, I thank my noble friend Lord Hunt for moving his amendments in a concise and informed way and for putting before the House the importance of the Modern Slavery Act and defending its principles.

I draw attention to Motion P1, moved by the noble Lord, Lord Randall, which is particularly important as it seeks to protect victims of modern slavery exploited in the UK. Although the Minister pointed to the protection the Government may give to British citizens, some of the exploited people the noble Lord, Lord Randall, referred to would not be British citizens and would therefore be out of scope.

It is worth spending a minute considering that we as a Parliament are here tonight reflecting on what was one of the finest achievements of the last Conservative Government and one of the proudest achievements of a former Conservative Prime Minister. I stand here as a proud Labour politician saying that. It was one of the reasons why our country was regarded as a world leader by countries across the world, and it was brought about by the actions of a Conservative Government.

When you read the speeches of not only a former leader, Iain Duncan Smith MP, but a former Prime Minister, it is no wonder that the latter is incredulous that her own party and Government would seek, as she says, to undermine completely an Act of which everyone was proud, including most Conservatives. I find it astonishing that the Government Front Benches of this House and the other place should simply sweep her views aside, almost as though they are the rantings of a failed person who is no longer relevant. She deserves greater respect than that, and to be recognised for what she achieved. I think I am right in saying that it was the first such legislation in the world. It was blown away not by a vindictive Labour Government but by her own Conservative Government, who have somehow just brushed it aside.

The noble Lord, Lord Randall, does us a huge service in bringing forward an amendment that I hope has the support of many of your Lordships, from all sides, and which tries to protect something of that achievement, that triumph, of a previous Conservative Government. In doing that, he gives us the opportunity to mark with great respect that achievement and work of a previous Conservative Government and Prime Minister.

I hope that the noble Lord will test the opinion of the House and that noble Lords will see fit to support the amendment in very large numbers, so that when it goes back to the other place they will think again about what they have done.

Illegal Migration Bill

Baroness Hamwee Excerpts

Report stage
Wednesday 5th July 2023 Lords Chamber

Moved by

[Baroness Hamwee]

168C: Clause 67, page 68, line 13, at end insert—
“(ba) section (Ten-year strategy on refugees and human trafficking) (ten-year strategy on refugees and human trafficking).”Member's explanatory statement
This amendment would provide for the new clause after Clause 61 proposed in another amendment in the name of the Lord Archbishop of Canterbury to come into force on the day on which the Act is passed.

Illegal Migration Bill

Baroness Hamwee Excerpts

Report stage
Wednesday 28th June 2023 Lords Chamber

[Lord Coaker (Lab)]

My Lords, I very much agree with the comments made by the noble Lord, Lord Paddick, particularly with respect to whether what is included in the Bill is an extension of existing powers, or simply a reiteration of what was in legislation that preceded the Bill. The noble Lord, Lord Hendy, did us a great favour in bringing forward a whole series of practical questions which the Minister started to answer in Committee. They are quite serious questions about the practicalities and, as the Minister knows, we have been concerned about not only some of our principled objections but also the workability of some of the clauses and powers contained in the Bill. It is worth reiterating, so it is on the record, what the noble Lord, Lord Hendy, said: the Government require transport workers—whether it be a lorry driver, a train operator, a train guard or a bus conductor—to act in an almost pseudo-police officer role to detain or search people.

If I were in that situation, I would be genuinely concerned about the implications. There are legitimate questions about the powers of detention, how long people would be detained, the use of force, and so on.

Can the Minister clarify one further point? His previous amendments added the words “immigration officer” to make the legislation consistent with later parts of the clause which refer to an

“immigration officer or the Secretary of State”.

Do the Government envisage any difference? Is that wording to cover any eventuality rather than any significant principled thing that the immigration officer could do that the Secretary of State could not, or vice versa? It would be interesting to know, and I look forward to the Minister’s response.

[Baroness Hamwee (LD)]

My Lords, I agree with the points made by the noble Lord, Lord Coaker. I am grateful to the Bill team for confirming this, but it would be useful to have it said in the Chamber that “immigration officer” is an immigration officer of any rank at all. There does not have to be any seniority attached to the post when an immigration officer is given powers in these provisions and elsewhere in the Bill.

[The Parliamentary Under-Secretary of State for Migration and Borders (Lord Murray of Blidworth) (Con)]

My Lords, I am grateful to the noble Lord, Lord Hendy, for moving the amendment in the name of the noble Lord, Lord Davies of Brixton, which seeks to protect transport providers. I understand the concern that this is causing.

To answer the points of the noble Lords, Lord Paddick and Lord Coaker, Clauses 7 and 9 simply reflect the current position, corresponding to the long-standing requirement set out in Schedule 2 to the 1971 Act. As now, risk assessments must be made before directions are given to a carrier, and escorts will be provided where this is assessed to be necessary.

All the practical issues raised by the noble Lord, Lord Hendy, apply equally under existing powers, and there are established protocols for dealing with them. We are not putting any additional burdens on the transport sector; in fact, we are providing for the costs of complying with directions under the Bill, but they will be paid for by the Secretary of State and will not be at the carrier’s expense. The amendment would therefore put the powers surrounding the giving of removal directions at odds with existing provisions and would effectively turn a requirement to remove people into a request, which would then impact on the number of illegal immigrants being removed.

Government Amendments 46 and 47 are prompted by a question posed in Committee by the noble Lord, Lord Ponsonby, who asked how transport workers could deal with a non-compliant person. Again, the answer lies in the Immigration Act 1971. It is already an offence under Section 24(1)(f) of that Act for a person subject to removal to disembark, and these amendments simply apply that offence to removals under the Bill. This then engages Section 3 of the Criminal Law Act 1967, which enables a person to use reasonable force to prevent a crime—a provision that I am sure the noble Lord, Lord Ponsonby, in particular, will be very familiar with.

Finally, returning to the amendments from the noble Lord, Lord Davies, Amendment 85 seeks to amend the definition of “vehicle” to limit the power in Schedule 2 to search vehicles to only those hired by the Secretary of State to remove persons pursuant to Clauses 2 and 3. We would not want to limit the power to search vehicles in this way; doing so would prevent immigration officers being able to search small boats, for example.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Wednesday 14th June 2023 Lords Chamber

[Lord Stewart of Dirleton (Con)]

Indeed, the right reverend Prelate did, and I confirm that I will happily correspond with him and copy in the noble Lord.

[Baroness Hamwee (LD)]

My Lords, I moved Amendment 139A. The right reverend Prelate and I have often had our names paired on amendments on these issues. The story from the noble Lord, Lord Ponsonby, about Home Office officials sitting in court to see what they can pick up was truly shocking, whatever other conclusions one might draw about it.

I am unclear why it is necessary to apply the restrictions about sharing data, automatically or otherwise, when the subject is already detained, but I come back to my principal point—sadly, it is not the first time we have made it from these Benches—that we thought that the effective immigration control exemption in the Data Protection Act, and so much now comes within that, was far too wide and had dangers inherent in it. The examples given by the right reverend Prelate in the field of domestic abuse bear this out.

We have heard a lot about the Government wanting co-operation from victims with regard to the investigation and prosecution of traffickers and smugglers. It does not seem to me that not agreeing to a firewall is the best way to go about getting that co-operation.

[The Deputy Chairman of Committees (Lord Beith) (LD)]

Is the noble Baroness withdrawing her amendment?

[Baroness Hamwee (LD)]

I was just about to. I beg leave to withdraw the amendment.

Amendment 139A withdrawn.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Wednesday 14th June 2023 Lords Chamber

Moved by

[Baroness Hamwee]

132: After Clause 60, insert the following new Clause—
“Operational efficiency(1) Within six months of the date on which this Act is passed the Secretary of State must publish a management review undertaken by management experts outside the Home Office, of—(a) the efficiency of the processing by UK Visas and Immigration of applications, and(b) the efficiency of the removal by Immigration Control of persons whose leave to remain has expired.(2) For the purposes of this section—(a) “efficiency” includes fairness, and(b) the review must include information regarding the numbers of appeals and their success rate.”Member's explanatory statement
This amendment requires the Secretary of State to commission an independent management review of the efficiency of UK Visas and Immigration in processing applications and the efficiency of the removal process for those whose leave to remain has expired.

--- Later in debate ---

[Baroness Hamwee (LD)]

My Lords, this is the first of a number of proposed new clauses relating to the efficiency of the Home Office and the elusive—maybe even illusory—impact assessment statement. We know we will be told that the impact assessment will be published “in due course”. The timetabling may be clear to the Home Office but it is not to any other noble Lord who has spoken. It occurred to me that the Home Office could really teach even Avanti West Coast or TransPennine Express something about timetabling.

We cannot put into the Bill that it should not go to Report without an impact assessment. Amendment 149 is therefore one of a number that I have tabled, all following the same form of drafting, so that the Bill should

“not come into force until”

and unless various things had happened, one of them being the receipt of the impact assessment. I realised, on reflection, that it was not my cleverest thought because I did not mean any old sort of impact assessment; I meant the sort that the noble Lord, Lord Carlile, was referring to the other day, when he talked about due diligence. That is a term I understand pretty well, as I think most people would. However, the amendment enables me to make the point that noble Lords have been making throughout.

On Monday, the Minister certainly referred to an economic impact assessment, as I think he mentioned before. My reading of the debates is that noble Lords want far more than just an economic assessment. I do not need to spell out that the impact of the Bill on third-sector organisations and so on, as well as individuals, will be considerable.

Amendment 132 is about the operation of the Home Office. Frankly, it is a pretty mild amendment, especially given how often it is remarked—I agree with this—that the backlog of applications is the problem, not the number of asylum seekers. The amendment simply calls for a management review by independent experts.

Many people are calling for the Home Office to clear applications from asylum seekers who come from countries whose nationals succeed in their applications in almost every case. We have heard reference to this throughout the Committee. It should be quite straightforward, but I confess that I am in two minds about it. I am anxious that asylum seekers are not all in the same position or with the same characteristics, even if they come from the same country. It would be too easy not to see each asylum seeker as an individual whose application should be treated as that particular individual’s application. However, that does not invalidate the point that what has been happening—or not happening —in the Home Office, rather than in the channel, is at the heart of the situation.

I mentioned earlier today the Justice and Home Affairs Select Committee’s report, All Families Matter: An Inquiry Into Family Migration, and the Home Office’s response to it. During the inquiry that led to that report, the committee, which I chair, heard from witnesses vivid descriptions of their attempts to find out what was happening to their applications. To give one example, people said that they had to hold the line for long periods and had to give a credit card number in their details because they had to pay for the call. They paid to sit on the phone but then found, when they got through, that they were not speaking to the right person or that the number that they had been told to call was not the right one. The frustration and distress mount and mount. We know that the Home Office’s service standards were affected by the Ukraine visa scheme and that the Home Office aims—I stress that word—to begin republishing quarterly performance data as soon as possible. Let me stress that I do not think that any of this is the fault of individual officials; there is something about leadership and management that needs to be sorted.

I will not read a lot from the Government’s response to the committee’s report but I want to pick out a couple of points. We made these recommendations:

“The Home Office should adopt a new approach to communication … The Home Office should establish standards about its communication with applicants and routinely publish statistics on whether these standards are met. Applicants should be able to contact the Home Office free of charge”.


The Government’s response states that the Home Office

“is working on a notification service”;

it is “currently in test”, it says. It goes to say:

“All applications are proactively monitored, and customers”—


I hate the word “customers” in this context—

“are notified prior to the end date of the service standard”.

Communication does not seem to be the Home Office’s strongest point or its natural behaviour; it is not one of its characteristics. So much of this goes back to efficiency and sympathy for customers, which matters an awful lot. These people feel that, too often, too many of them are treated as statistics and numbers. The service is a poor one. That is one of the reasons why I have tabled Amendment 132, which I beg to move.

[Baroness Chakrabarti (Lab)]

My Lords, Amendment 139 in this group is in my name. This group is all about efficiency and administration. Amendment 139 is purely a probing amendment—there is no way that anyone would seek to engineer changes to the machinery of government via an opposition amendment to yet another immigration Bill—but I put it down to probe the tensions that have been emerging and increasing in recent years, even months and weeks, between the respective competencies and missions of the Foreign, Commonwealth and Development Office on the one hand and the Home Office on the other. I also tabled it to stress the vital importance of international co-operation in dealing with the worst refugee crisis since just after the Second World War. It is, I am afraid, a crisis that is only going to deepen with the threats posed not just by the various conflicts all over the globe but by the climate crisis, as others have said.

Amendment 139 probes and sets out the kind of functions that sit with the Secretary of State. Noble Lords will remember that the Secretary of State is indivisible, so when Governments of various stripes move the deckchairs around and pass functions from one department to another or even rename or reconstruct departments, the Secretary of State is the Secretary of State. The kind of functions that I set out in my suggestion for an office for refugees and asylum seekers are those in general that are much more suited to the expertise and mission of the Foreign Office. That is why consideration of the various international obligations is set out, such as the function of considering safe passage and humanitarian protection and advising the Secretary of State in relation to aid and other action in conflict. It is the relationship between over there and over here.

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[Lord Sharpe of Epsom (Con)]

I will certainly ensure that the noble Baroness’s points are noted in the department.

Finally, Amendment 139FD would place a duty on the Home Secretary to publish quarterly statistics on the Bill’s operation after it is enacted. Again, I have no issue with the basic premise underpinning the amendment. We already publish a raft of immigration statistics on a quarterly basis and I have no doubt that these regular publications will be augmented to report on what is happening under this Bill once it is commenced. We will consider carefully what data it is appropriate to record and publish as part of our implementation planning. I am sure that the noble Lord, Lord Coaker, and his Front-Bench colleagues in the other place will not be slow to press the Government for the kind of data referenced in the amendment.

I and my ministerial colleagues, in particularly my indefatigable noble friend Lord Murray, have heard loud and clear the calls from around the Committee that the economic impact assessment for the Bill should be available to your Lordships before the start of Report. My noble friend has committed to updating the House before the first day of Report and I have already read out the Home Secretary’s comments from this morning. However, having had this opportunity to debate the issue again, together with the other issues addressed in these amendments, I invite the noble Baroness to withdraw her amendment.

[Baroness Hamwee (LD)]

My Lords, on the question of a secret plan or no plan, the announcement that came out the other day—it was almost not an announcement —that the provision about two classes of asylum seekers in last year’s Bill had been ditched suggests that there is no plan. On the question of external management consultants, I am not a particular fan of management cons; there has not been a success story so far, has there? My noble friend Lord Scriven’s reference to the ICIBI report was absolutely on point: reports from the ICIBI, the National Audit Office and so on do not seem to lead to any change, so one has to try something.

I am left with a very big query: why can the impact assessment not cover variables? It should address the “what ifs”. As I am reminded, it is required to provide options, and over the years I have seen so many impact assessments that do provide options: “if such and such, then so and so”. The Home Office is well on the way to out-Rumsfelding Rumsfeld. I beg leave to withdraw the amendment.

Amendment 132 withdrawn.

--- Later in debate ---

[Baroness Lawlor (Con)]

My Lords, I thank the noble Baroness, Lady Ludford, for raising this interesting point and for her proposed Amendment 133. The purpose of the Bill is to prevent and deter illegal migration, and it provides for swift removal, with very few exceptions. Therefore, I am not quite sure why a new clause after Clause 60 is necessary, particularly because, in respect of applications for work from asylum seekers who are already having their asylum claims processed, as far as I know—I am subject to correction here—those are covered under the 2016 Immigration Rules. Part 11B sets out the policy criteria, which can be found in paragraphs 360A, B and C.

I will also comment on various noble Lords’ claims about the potential contribution that asylum seekers can make to the economy. Yes, there may indeed be contributions which can be made, but perhaps we should also consider the costs, the compliance costs and the fact that the UK is trying to move to a high-skills economy, where people with higher skills or where there is a need already can apply to work here under the normal rules. I cannot see why we need this amendment to the Bill.

[Baroness Hamwee (LD)]

I had not intended to say anything about this amendment, but I will say a couple of things. First, those of us who have met a number of asylum seekers have been very impressed by the high level of skills and enthusiasm for work that they exhibit. Secondly, in response to the noble Baroness, Lady Stowell, I understand the point that she is making about the objective of the Bill, but it has a very long Long Title and I doubt my noble friend would have been able to table her amendment had the clerks not agreed that it was in order.

[Baroness Stowell of Beeston (Con)]

I am not in any way trying—

--- Later in debate ---

[Baroness Hamwee (LD)]

My Lords, I am sorry if the noble Baroness misunderstood my first comment. It was in response to the point made by the noble Baroness, Lady Lawlor.

[Lord Carlile of Berriew (CB)]

My Lords, I hope that the noble Baroness will not mind my using her as an excuse but, on reflection, I think that I was unkind to the noble Baroness, Lady Lawlor, and I wish to apologise to the House.

[Baroness Hamwee (LD)]

My Lords, shall I move on to Amendment 150? In fact, it takes us back to the previous group; I have no idea why it comes into this group. It would provide that the Act should not come into force until at least 28 days—I propose—after the Secretary of State has published a statement confirming the number of persons who, for a period of six months or more, have been awaiting final determination of their claim for asylum; and that, for not less than six months, that number has been not more than 20,000.

That may be a little circular and rambling but, basically, it proposes that we should get to a steady state in dealing with asylum applications. The periods may not be ones that noble Lords agree with, but I propose a figure of 20,000 people, which is not a negligible number of people. This amendment seeks to be realistic and provide a bit of—to our minds—common sense to the context of what we are debating.

I am grateful to the noble Lord, Lord Carlile, the noble Baroness, Lady Neuberger, and my noble friend Lord Paddick—who probably had no option but to sign it. This is a serious amendment that follows on from the serious points made about the operations of the Home Office. It is the backlog that is the problem. So much of this debate has suggested, implicitly or explicitly, that the position that we are in is somehow the fault of those who are seeking asylum, which is not an easy thing to take on.

[Baroness Neuberger (CB)]

My Lords, I will speak to Amendment 150, to which I have added my name, and indeed to all the amendments in this group—I will be very brief.

Of course it is right that we should get the backlog down, and of course it is right that we should have a steady state, if you like, and be able to operate an asylum system that is humane, speedy and efficient. It is none of those things at present and we do not show any great signs of getting there any time soon. That is one reason why we suggest that the provisions of this Bill should not come into force until that has been achieved.

I am, along with my noble friend Lord Carlile, a member of the Woolf Institute’s Commission on the Integration of Refugees. I am also Rabbi Emerita of the West London Synagogue, which runs a drop-in for asylum seekers on a regular basis and has done for more than 10 years. I also chair a small family charity that provides scholarships for young asylum seekers to access education, which they otherwise could not do because they cannot get student loans. The reason I raise those things is that they mean that I talk to quite a lot of asylum seekers, for a variety of different reasons. I have never yet met an asylum seeker who has managed to get to this country who does not want to work or is not willing to work. Most of them are in fact very talented; the students we support are unbelievably talented and have been through absolute hell, but nevertheless show incredible determination and eventually get serious professional qualifications and very good degrees.

It seems to me that what we need to do in this House is look seriously at what we want to achieve by an asylum system. Surely we want to achieve the allowing in of those who are genuinely in fear of persecution, as well as all the other reasons that we allow asylum seekers in, and create a refugee system. In so doing, however, we want to treat people humanely, as the noble Lord, Lord Cormack, said; his was a very impressive speech. We want to have coming here people who want to be here and make a contribution. We need to think quite hard about what we are trying to do. There is no pull factor, really—it just is not evidenced—but there is a very large number of desperate people seeking asylum in this country. Those who are genuine and can prove it should be treated humanely, accepted and allowed to work even if their full refugee status has not yet been achieved.

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Moved by

[Baroness Hamwee]

136: After Clause 60, insert the following new Clause—
“People smuggling(1) Not less than six months before the other provisions of this Act come into force, the Secretary of State must lay before each House of Parliament a report regarding agreements and discussions with the governments and authorities of other countries, including those bordering the English Channel and the North Sea, concerning the steps taken or agreed or proposed to prevent or deter a person from—(a) charging refugees for assistance or purported assistance in travelling to or entering the United Kingdom;(b) endangering the safety of refugees travelling to the United Kingdom.(2) The report must focus on steps other than the provisions of this Act.(3) This section comes into force on the day on which this Act is passed.”Member’s explanatory statement
This new clause requires the Secretary of State to publish a report on the actions that are being taken to tackle people smugglers.

[Baroness Hamwee (LD)]

My Lords, Amendment 136 is one of a series of amendments we have tabled on the criteria that should be met before the Bill—an Act by then—comes into force. Amendment 136 is about people smuggling, though the term is not used; about

“(a) charging refugees for assistance or purported assistance in travelling to or entering the United Kingdom; (b) endangering the safety of refugees”.


The answer to most questions, of course, is to stop the boats. I wondered during the debate on the previous group whether “stop the boats” actually features as a phrase in the Bill. I do not think it does, but it seems to be the answer to everything.

People smuggling, the criminal activity which is so closely related to small boats and which the Bill purports to deal with, led to subsection (2) of the proposed new clause: the steps that are included in the Bill are not, in our view, an answer to the problem. I find it very distressing that, with such a serious situation, we have a Bill that implicitly blames victims, and we hear very little other than platitudes about tackling the criminals. We know, of course, that people fleeing by boat, endangering their lives and losing their lives, is not unique to the channel and the North Sea, which are referred to in the amendment. Geographically, we are most closely affected by those, but a lot of lives have been lost by people fleeing from countries bordering the Mediterranean and further afield.

My name is attached to Amendment 139F in the name of the noble Baroness, Lady Kennedy. As she is not here, I will speak to it very briefly, because I think it would be a pity if there was no response from the Government, and I have no doubt that the Minister has a response—he is nodding. The noble Baroness’s proposal, supported by the noble Lords, Lord Alton of Liverpool and Lord Carlile of Berriew, as well as by me, is that

“Where a person meets the … conditions in Section 2”—


which is the fulcrum, if you like, of the Bill; and I like the way it is phrased, rather than “meets the criteria”—

“and is suspected of involvement in genocide, crimes against humanity or war crimes, the Secretary of State is required as soon as reasonably practicable … to refer the person to relevant authorities in the UK for investigation and possible prosecution; … to cooperate with authorities in other safe countries and international tribunals who may be investigating the person”.

I look forward to the Government’s views on that and beg to move Amendment 136.

[Lord Swire (Con)]

My Lords, a more sensitive soul might be somewhat disheartened, having sat here for a large part of this debate only for the entire Chamber to empty at the very thought of me saying anything at all, but I will do my best. Perhaps I am getting an early reputation in this place already.

I will speak to the amendment in my name and those of my noble and learned friend Lord Garnier and my noble friend Lord Soames of Fletching, who unfortunately is unable to be with us but would have liked to have taken part in this debate had he been able to. There has been a lot of discussion about the Bill’s scope, and I was quite pleased to get this amendment through the Table Office, because it is slightly wide of what the Government are debating, which is stopping the boats. The Bill is about illegal immigration, and it is my view that a Government have an absolute duty to secure their own borders and to know who is coming into the country, who is in the country and who is leaving the country at any time. It seems extraordinary that there is still no passport control when people leave this country, as well as when they come into it. Only by knowing how many people there currently are in the United Kingdom can we have a proper, dispassionate and, to use that word, humane debate about what size we are prepared to let our population rise to.

The problem, of course, is with the official statistics—or rather the lack of them. The Government’s publication, Irregular migration to the UK, year ending March 2023, states:

“The statistics presented here relate to the number of people recorded being detected on, or shortly after, arrival to the UK on various routes. They do not provide an indication of the total number of people currently in the UK who have entered the UK via irregular routes or the number of irregular migrants present in the UK. It is not possible to know the exact size of the irregular population currently resident in the UK, nor the total number of people who enter the UK irregularly”.


The official population of the United Kingdom in 2023 is recorded as being just under 68 million, which represents a steady year-on-year increase. Some would have the real population of this country at least 1 million more. Then there is what I call the supermarket theory, which says that the real population of this country is many millions more. I have even read one report alleging that the real population of this country is not 68 million but nearer to 80 million. Of course, if you look on Twitter, you need not necessarily believe all those conspiracies.

My point is not to quibble about the size but to demand that the Government and their various agencies do more to find out the real population of this country. If the figure is 1 million or 2 million in excess of the published data, that, by definition, must mean that hundreds of thousands of people are living outside the system. How can they access healthcare and schools? What about national insurance contributions? What happens to them in old age? If they are outside the system, they are more vulnerable to low wages, abuse, poor housing, inadequate medicine and all the things that we take for granted. They are the losers, but so are we, as by definition they are not paying any tax, for TV licences or anything that people even on low incomes are obliged to pay. They are not participants in society; they are existing on the margins of it.

As it happens, I have no particular view on what should happen to those who have already settled here illegally. I am sympathetic to some sort of amnesty, but I am equally sympathetic to those who feel a sense of injustice that these people have in some way cheated the system—jumped the queue, if you like—and that they should retrospectively be subjected to the same rules on immigration as those who have sought to come after them. However, many of these illegal immigrants will be in low-paid and insecure jobs. Many businesses, certainly those in the hospitality sector, need these people. Indeed, because of Covid and, dare I say it, Brexit there is a critical shortage.

Equally, we must concede that many of those jobs could be filled by British people. I use that term to describe people who are here legally, regardless of whether they were born here or not. We need to be honest with one another. Of course, the argument goes that we need more immigrants to help grow the economy, but, equally, we should recognise and admit that the more people we have, the more schools we will need to open, the more hospitals we will need to build, the more investment in infrastructure we will need, and, critically and perhaps most contentiously of all, the more housing we will need to build. When we have done all that, and the economy has expanded, we will presumably need more immigrants to staff the increased size of our public services. That may well be acceptable, even desirable, but I believe that the British people should have the right to have a say on this. It is not just up to the politicians—or, indeed, if I might say so, the Church—to decide on the size of the population of this country.

I return to my original point. We cannot have an informed debate about this until the Government come to the table and lay before Parliament an annual estimate of the number of illegal immigrants already in this country. My noble friend the Minister will no doubt argue that this information is published, yet it is not published in a clear, unambiguous document—but it must be. Ministers and many others will ask, “If these people have been illegally operating in this country in the black or grey economy, how can we possibly find out who or where they are?” Perhaps identity cards are the answer. I am not convinced by that, but in this information-gathering world, where our data is increasingly harvested, there must be ways. Just look at the NHS app, which most of us signed up to during Covid.

Another approach—I am grateful to Migration Watch for suggesting this—would be that of residual methodology, which allows us to estimate the size of the illegal immigrant population by comparing a demographic estimate of the number of immigrants residing legally in the country with the total number of immigrants as measured by a survey. The difference is assumed to be the number of illegal immigrants in the survey, a number that later is adjusted for omissions from the survey.

I now turn to the second part of the amendment, which covers the issue of foreign national offenders held in our prisons. I am very aware of this because, when I was a Minister in the David Cameron Administration, we were all given countries to be responsible for. We were summoned regularly to No. 10, as he was trying to drive down the number of foreign national offenders and get them back to their countries of origin. It was an astonishingly difficult thing to do, not least because of the interventions of the legal teams who were trying to stop them having to go back. Further difficulties were from some countries which destroyed all the information about them, so it was very difficult to ascertain as to where they had come from and who they were. It is a difficult task, but it is an achievable one.

In March of this year, I asked a number of questions of the Home Office, which I shall not repeat now, on the number of foreign national offenders and how many we had repatriated. From that, it would seem that some 12% of the current total prison population of England and Wales—10,148 people—fall into that category. The cost alone of that is huge. The average cost of a prison place in England and Wales was £46,696 in 2021-22, so we are spending about half a billion pounds a year, by my very ropey maths, on housing these foreign national offenders. The Home Office must get a grip; we want more action and enforcement and fewer excuses as to why it is impossible to send those foreign national offenders home.

The noble Lord, Lord Carlile, who is not now in his place, rather unfairly described the desire from the Government to do something about immigration as an attempt to address the demands of the red wall—non-traditional Tory areas of the country which voted overwhelmingly for this Conservative Government in the last election. That is not a fair accusation; I think that the majority of people in this country want a humane and fair system, and one that actually works and is seen to work. Between 70% and 80% of the British public support measures aimed at deterring illegal immigrants from remaining in the United Kingdom. The truth of the matter is that none of us knows the scale of illegal migration because no official estimate has been published since 2005.

I very much hope that the Government will support this amendment, as I hope that His Majesty’s loyal Opposition will. If they do not, they will need to explain why not. At its simplest, the amendment is to encourage the Government to find out, before we agree on the future immigration policy, how many illegal immigrants and foreign national offenders are in this country, and to publish that data clearly and unambiguously on an annual basis.

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[Lord Stewart of Dirleton (Con)]

The noble Lord, Lord Hannay, from the Cross Benches, submitted my use of the verb “require” to a degree of philological scrutiny, which I had not taken into account when preparing my answer. I take the noble Lord’s point in relation to empowerment as opposed to obligation.

I regret to say that, in relation to the complex interrelating commitments to which the noble Baroness sought my views from the Dispatch Box, I will have to undertake to correspond with the noble Baroness and the noble Lord.

I sum up what has been a short debate by thanking noble Lords for their informed scrutiny of what has been said, not only by me but by others participating in earlier parts of the debate. From the perspective of this Committee, at this stage, the issues have been given a good airing. Noble Lords have referred to the inevitability that we will consider the matter at a later stage but, at present, I invite the noble Baroness to withdraw her amendment.

[Baroness Hamwee (LD)]

My Lords, the debate was not that short, but perhaps it was shorter than those on some of the other groups.

I will just comment on the Minister’s response regarding people smuggling. I find it quite depressing that reliance is placed on deterring demand rather than on deterring criminals. I wonder whether the strategy might include, if it does not now, a communications component. We are told of successful prosecutions, but I am not sure that I ever really read about those in the press; perhaps I read the wrong media—I do not know.

Though I have heard what the Minister had to say, to me it is the criminality—the smuggling—that is at the heart of the problem. I am sure that we will come back to it as an issue in some form at the next stage. For now, I beg leave to withdraw the amendment.

Amendment 136 withdrawn.

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Moved by

[Baroness Hamwee]

139A: After Clause 60, insert the following new Clause—
“Secure reporting for victims of crime(1) The Secretary of State must, by regulations, make provision for the prohibition of automatic sharing of personal data of a victim or witness of crime for the purposes of section 2(1).(2) In section 20 of the Immigration and Asylum Act 1999 (power to supply information etc to Secretary of State), after subsection (2B) insert—“(2C) For the purposes of section 2(1) of the Illegal Migration Act 2023, this section does not apply to information held about a person as a result of the person reporting criminal behaviour which they are a victim of or a witness to.”” Member's explanatory statement
This new Clause would prevent immigration data being shared for the purposes of section 2(1) about a victim or witness of crime who reports an offence. This is to ensure victims are able to approach the authorities for assistance without fear of removal under section 2(1) as a result of that contact or resultant data sharing with immigration enforcement.

[Baroness Hamwee (LD)]

Amendment 139A is in the name of the noble Lord, Lord Alton of Liverpool. The noble Lord, Lord Carlile of Berriew—who has managed to escape for the moment—has added his name to it, as has the right reverend Prelate the Bishop of London.

This amendment seeks to prevent immigration data being shared for the purposes of Clause 2(1), under which the Secretary of State must make arrangements for the removal of people who meet the four conditions. I am very happy to have my name to this—I would not have signed it if I were not happy—because the issue of exemption from the Data Protection Act is one which my noble friend Lord Paddick and I have raised many times since we debated the then Data Protection Bill. The exemption from restrictions on sharing data for the purposes of immigration enforcement or immigration control—I do not recall which but it amounts to the same thing—is a very wide exemption.

The concern here is to ensure that victims can approach the authorities for assistance without the fear of removal as a result of that contact, or of data being shared with immigration enforcement. Noble Lords have frequently made the point about people without secure status having more confidence in smugglers and traffickers than they do in the authorities. The traffickers’ threats are not ones that they will take lightly; they control their victims, notwithstanding that the victims have “escaped”.

We have a number of other clause stand part notices, all amounting to the fact that we oppose the whole of the Bill. The clauses which are listed in this group are not substantive clauses; in other words, they are not about policy. I will mention just one, which is about financial provision. I am alarmed—we all are—at how much will be spent on what we consider to be the likely costs of the policy. I will not go over them again. We are firmly opposed; I do not think I need to spend time re-emphasising that point. I beg to move Amendment 139A.

[Lord German (LD)]

My Lords, I have two sets of amendments in this group. First, Amendments 142, 143, 144 and 147 seek to examine how the Brook House inquiry findings can influence the way in which the Bill will be enacted. Secondly, Amendment 139FE seeks to examine the devolution issues, which I will be looking at specifically through the legislation governing Wales and, very specifically, the Act of Parliament which I want to test the Government on.

First, my intention is to find out how the Government intend to deal with the recommendations of the Brook House inquiry when it reports and apply them to the changes that it will necessitate in the implementation of the Bill. Under the Inquiries Act 2005, the Brook House inquiry into mistreatment and abuse in breach of Article 3 of the ECHR at Brook House immigration removal centre was instituted in November 2019, following a judicial review proceeding. The inquiry has heard extensive evidence, and it is the first public inquiry into the mistreatment of those detained under immigration powers. The conditions of that detention provided a unique opportunity for public scrutiny of and accountability for detention practices and culture.

The inquiry, which we understand will be published in late summer, has heard evidence from detained persons, detention officers, healthcare providers, G4S—which was the contractor responsible for Brook House at the time—employees, Home Office officials, members of the independent monitoring board and His Majesty’s Inspectorate of Prisons. The inquiry also appointed and heard from three experts to address the key issues of the use of force, the institutional culture, and clinical care provision and safeguards. It also examined a vast amount of documentary material and video footage.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Wednesday 14th June 2023 Lords Chamber

[Lord Green of Deddington (CB)]

My Lords, I will be extremely brief. I suggest that we look at these issues, which have now been dealt with in great detail, in a wider context. The fact is that the asylum system is a shambles; I will not go into that any further—we all know that. However, we need to be very careful before we make further commitments on safe and legal routes.

The wider reason is that, last year, we had overall net migration of 606,000. Of those, roughly 200,000 were refugees of different kinds—I am putting it in the most general terms. If that is allowed to continue, and if we fail to reduce the other elements of immigration which are also rising very quickly under this Government, we will have to build something like 16 cities the size of Birmingham in the next 25 years. Nobody has challenged that, because it is a matter of arithmetic.

We face a huge problem. Therefore, I suggest that whatever the arguments for this particular category may be, we need to keep well in mind the wider impact on the scale and nature of our society. That should not be overlooked.

[Baroness Hamwee (LD)]

My Lords, I have my doubts about the term “safe and legal routes” as well. I would prefer to focus on safety; to talk about legal routes now impliedly accepts the argument that people who come here in the way that we have been discussing are in some way illegal. I do not think the routes are illegal any more than the people.

I did not know that my noble friend was going to refer to the recent report of the Justice and Home Affairs Committee on family migration, published in February. It raised a number of matters pertinent to the debate. Noble Lords will be familiar with the problem that one of our recommendations addresses. We recommended that the Home Office should allow biometrics to be completed on arrival in the UK for a wider range of nationalities in crisis situations. As noble Lords will know, there are many countries in which it is not possible to reach a visa application centre before travelling in order to enrol your biometrics. There are countries which do not have them. My noble friend Lord Purvis of Tweed said of the Government’s attitude to Iran and Sudan that they do not recognise the reality of the situation. In this connection, I do not think they recognise the realities either.

The reply from the Government arrived less than a week ago. I hope that this “in due course” is quite quick, and we will have the opportunity to debate it, but who knows? The Government said:

“Where an applicant considers they cannot travel to a Visa Application Centre … to enrol their biometrics, they can contact us to explain their circumstances”.


Well, that sounds practical, does it not? They continued:

“New guidance will be published in the near future setting out the unsafe journey policy. Where an applicant believes that travelling to a VAC would be unsafe, their request will be placed on hold pending the new guidance being published, however, should there be an urgent requirement to resolve their request this should be made clear in the request and consideration will be given as to the applicant’s circumstances and whether there is an urgent need to travel to the UK. If the request is deemed to be urgent we will contact the applicants to explain available options prior to the guidance being published”.


What a neat and tidy world the Home Office thinks exists.

[Baroness Chakrabarti (Lab)]

My Lords, I know this is not something I say very often, certainly not in the context of this debate, but the Government are to be commended for their welcome to Ukrainians and Hong Kongers, and a little less so for their slightly less warm welcome to Afghans.

Even more than commending the Government, I commend the British people who opened their homes and hearts to these desperate people. When we are making these generalisations about what our countrymen will or will not tolerate and what the will of the people is or is not, it is important to remember that. There is real value in allowing people to open their homes and hearts, rather than putting people on barges or in de facto prisons and so on. It is that separation that leads, in part, to the dehumanisation of these people who are coming to our shores in the most difficult times.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Monday 12th June 2023 Lords Chamber

However, as the Bill stands, a victim of trafficking can be returned as soon as possible and without waiting for the results of the identification process. Furthermore, during the process, the individual should be provided with all the relevant assistance indicated in Article 12 of ECAT, which sets out six forms of assistance to which the individual is entitled. How far have His Majesty’s Government taken into account Articles 10 and 12 of ECAT? I think we would all like to know, and I look forward to hearing the Minister’s response.

[Baroness Hamwee (LD)]

My Lords, I have Amendment 85D in this group and have added my name to Amendment 85C from the noble Lord, Lord Alton, and the amendments from the noble Baroness, Lady Ritchie, and the noble Lord, Lord McColl. I have also tabled opposition to two clauses standing part, because we on these Benches oppose the whole approach to modern slavery and trafficking in the Bill. We oppose every clause in the Bill and have tabled that opposition because it is not a matter of tweaking, although the amendments draw attention to some particularly egregious provisions.

Clause 25 is about suspension and renewal, but its very existence, sunsetting after two years, indicates, as the JCHR noted, that the Home Office recognises the severity of the provisions. They may be short term, but they will not feel that way to victims and survivors. Can I just say how much I admire the work that the JCHR has done on the Bill? It has produced a splendid report, which I am afraid I flicked through to find the bits relevant to today—but then I am human, and the whole of it will get read.

What evidence is there of abuse of the system? Assertion is not evidence. What evidence is there that victims of modern slavery are likely to be a danger to the public or a threat to public order? Is it really appropriate for a Minister, having sunsetted a provision, to revive it by regulations? A lot of constitutional points arise in the Bill. Mind you, I would rather see it sunsetted before the sun even rises.

When the Bill was starting its passage through Parliament, I was in a taxi and the driver inevitably wanted to tell me what Parliament should be doing. On the subject of small boats, he said he was concerned that his children should be safe from all the terrorists arriving in small boats. He was hearing the message that the Government wanted him to hear. Actually, we had quite a reasonable conversation about asylum seekers and he was very receptive to a number of the things I said, but it brought home to me just how dangerous the Government’s messaging is: it is dangerous to individuals, dangerous for cohesion and integration, dangerous in the attitudes it fosters and much else.

As the JCHR said, how can the modern slavery clauses be applied compatibly with Article 4 of the convention, which places on the state positive obligations that are absolute and cannot be derogated from? A similar point arises with ECAT. The JCHR recommends that Clause 21 be removed, and although I took a little comfort from the fact that our instincts were backed up, that does not achieve it, of course. As the committee said, there should at least be no removal of asylum seekers until a “conclusive grounds” decision has been made. As Amendment 85D indicates, one of our concerns is the recovery period, as it always has been. For many victims, 30 days is nowhere near enough for them to recover. There being no period for recovery at all is far worse.

Amendment 90 refers to co-operation with investigations and proceedings. The point that occurred me a day or two ago follows on from what the noble Lord, Lord Carlile, has been saying. I do not think the point has been made that the absence of the victim may jeopardise proceedings in a number of ways, including because the victim is not available for cross examination, either in person—that is always best—or by video link if that is what the Home Office envisages. I want to take this opportunity to ask the Minister: what is envisaged? Are the Government confident that it will always be possible to give evidence by video link, given the countries to which asylum seekers may be removed? Is this to be a provision in removals agreements? It seems to me that not a lot more than lip service is being paid to the importance of tackling smuggling and trafficking gangs, improving the conviction rate and securing remedy for victims. Nothing in the Bill will increase the efficiency of all those things.

Finally, I want to say a word on Amendment 146 in the name of the noble Lord, Lord McColl, which addresses the absence of an Independent Anti-Slavery Commissioner. I hope we will not hear from the government Front Bench that a new commissioner will be appointed “in due course”. The lack of an appointment for over a year now makes the Government’s lack of real concern about modern slavery very evident.

[The Lord Bishop of Southwark]

My Lords, Amendment 88 in the name of the noble Lord, Lord Coaker, is supported by my right reverend friend the Bishop of Gloucester, who regrets that she is unable to be here today. There is much similar ground in this amendment to others, but this amendment focuses specifically on victims of sexual exploitation.

The Bill directs that victims of modern slavery, including victims of sexual exploitation, shall be subject to detention and removal to their own country or to a third country. As we have heard, the principal exception to this is if the Secretary of State is satisfied that the individual is co-operating with criminal proceedings and that their presence in the United Kingdom is necessary for this to continue. We know that the Government have committed to victims of sexual violence and exploitation in this country. The UK ratified the 2011 Istanbul Convention on Preventing and Combating Violence Against Women and Domestic Violence only last summer and there has been much work done over the past few years to increase awareness and tackle perpetrators. To deny those who have arrived here safety and protection is a regressive move.

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[The Lord Bishop of Durham]

My Lords, I rise to support the removal of Clauses 22 to 24 and 27, as proposed by the noble Baroness, Lady Hamwee, and my right reverend friend the Bishop of Bristol. As the noble Lord, Lord Coaker, noted, many of the arguments are similar to those related to Clause 21, so we will not repeat them.

Clauses 22 to 24 carry through the logic of Clause 21 and remove protections and support from those who, crucially, have already been identified and assessed as having reasonable grounds to be considered a victim of trafficking or modern slavery. These victims are not self-identified or -assessed. They have to be referred by a first responder agency, such as the police, and assessed by the competent authority.

The insidious nature of applying these provisions retrospectively is that there are people now in safe houses who are receiving specialist support to rebuild their lives or to build a legal case against their abuser that might be used by law enforcement. To have those protections and support removed from them before a conclusive grounds decision can be reached on their case seems cruel. Someone who has potentially just escaped an abusive situation and has been assessed by a first responder and the Home Office as having a reasonable case and who is for the first time receiving support from a specialist agency could be told out of the blue that support is withdrawn and they are subject to detention and removal. To deter one group of people, we will wash our hands of a much larger group who did not arrive by boat or even necessarily of their own volition.

The long and short of these clauses is that to weed out an unknown and unproven level of abuse, and without any evidence that it will deter Channel crossings, we will be simply abandoning victims. We will be doing so in a thoroughly dramatic and cruel way by withdrawing support that has been offered. I cannot see this is justifiable, still less desirable, and I ask the Minister to consider the clauses in their entirety.

[Baroness Hamwee (LD)]

My Lords, I am not going to repeat the points that I made on the first group because they apply in a very similar way to the amendments in this group, which in our case amounts to opposition to the clauses standing part of the Bill.

In the first group, I strayed into Clauses 25 and 26, which should really be here—the revolving door of a revolving sunset. A point I did not make was how much scope the Secretary of State has to keep on altering the direction of how things go with minimum scrutiny because, to me, scrutiny should include an opportunity to make changes. So much is dealt with by regulations. All the clauses on modern slavery are part of a whole, which, as a whole, we oppose. The Bill does nothing to tackle modern slavery and trafficking, does away with support for many victims and damages the UK’s reputation. Like the noble Lord, Lord Randall, who spoke earlier, I do not much like the term “world leading”, but that was what people were saying of us not so very long ago.

[Baroness Kennedy of The Shaws (Lab)]

My Lords, a number of years ago, I chaired an inquiry in Scotland for the Equality and Human Rights Commission of the United Kingdom to look into the position of trafficking in Scotland because it was a surprise that at that time there had not been any prosecutions. Was this because there was no problem in Scotland, or was something happening with regards to investigations?

I want the Committee to know that after many years of practice at the Bar, doing some of the most shocking and desperate cases, the experience of chairing that inquiry into modern slavery was revelatory to me in hearing evidence—particularly, of course, from women who had been sexually used, and used in the most horrifying ways, where their whole days were spent servicing men. Afterwards, they needed to be looked after, cared for and encouraged to believe that their families back in the countries from which they had come would not be punished if they were to testify in a court of law. The threats that they had experienced were of such a kind that they lived in terror of those who had victimised and trafficked them.

I really do feel—I heard earlier one of the Conservative Back-Benchers asking the Minister whether he had ever met anyone who had been trafficked—that meeting those who have been trafficked is a shocking business. It also goes on to those who, for example, are subjected to slavery within the domestic environment, who are worked almost to death. They are brought over from other countries, live in households in which they are expected to get up at the crack of dawn and work through until the wee small hours of the following day, and are not rewarded—their wages are supposed to go to their family back somewhere else. The accounts that one hears are just shocking.

The fear that people have, which has to be catered for in having them give testimony in a court of law against those who have been their traffickers, is such that to be removing all of that is just shocking. It is unbelievable to people in other parts of the world. My work has now changed; it is now in international law, and everywhere I go people are shocked by Britain, which led the way on this and was so inventive in creating this legislation. Other countries are now saying “What is Britain thinking about?”, and we are really uncertain as to what the Government are thinking about.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Wednesday 7th June 2023 Lords Chamber

Debate on Amendment 57C resumed.

[Baroness Hamwee (LD)]

My Lords, I had got as far as “My L—” when I was interrupted. I am sorry, I do not mean “interrupted”: I mean when we heard the Motion that the House be resumed. It was not going to be a major speech—it still is not, although I could have spent the last half-hour working on it.

I thank the noble Baroness, Lady Lister, who dealt with the issues very comprehensively, and the Refugee Council, which has been so helpful in briefing us. I simply observe the irony of our debating state support in the context of state-inflicted detention.

[Lord German (LD)]

I apologise to the Committee for speaking twice, but of course this is Committee so I can do it again.

To reiterate some of the issues that the noble Baroness, Lady Lister of Burtersett, raised, this is an issue which you need to understand if you are to propose and manage this policy and move it further forward. “What happens next?” is not just a big question, it is of crucial importance to people and people’s lives. I will not repeat my statements about assessments, which are well made and obviously made all the time, but we have heard an exposition of this issue, which needs to be resolved. We need answers to those questions.

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Moved by

[Baroness Hamwee]

58: After Clause 8, insert the following new Clause—
“Repeal of asylum seeker accommodation regulationsThe Houses in Multiple Occupation (Asylum-Seeker Accommodation) (England) Regulations 2023 are repealed on the day on which this Act is passed.”Member's explanatory statement
This amendment provides for the repeal of the Houses in Multiple Occupation (Asylum-Seeker Accommodation) Regulations 2023.

[Baroness Hamwee (LD)]

My Lords, this amendment relates to a statutory instrument that has recently been approved.

I appreciate that the issues of the use of houses in multiple occupation for asylum seekers and the changes in the standards applying to such houses for that purpose may not have crossed the inboxes of most noble Lords; they certainly had not crossed mine until I was told that the SI changing the regulations was scheduled and found myself scheduled to speak on it. Like many such instruments, it was considered in Grand Committee and then went through the House very quickly. The purpose of the instrument is to make provision to exempt accommodation provided by the Home Office for asylum seekers from licensing requirements; that sounds quite straightforward.

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[Lord Stewart of Dirleton (Con)]

I beg the noble Lord’s pardon; I meant to answer that question and sought specific information from the Bill team on it. The regulations apply only to England and not to Wales, Northern Ireland or Scotland.

Finally, I invite the noble Baroness, Lady Hamwee, to withdraw her amendment.

[Baroness Hamwee (LD)]

My Lords, I am not going to say very much. Many Members are waiting to consider the large number of amendments we are scheduled to get through tonight—whether we will or not, we will see.

I thank the noble and learned Lord for his responses to the shedload of questions which came from this side. I was surprised that he started by saying that the regulations are intended to ameliorate conditions for asylum seekers, because it seems to everyone involved that it is about numbers and not better conditions. He has given assurances about engagement with local authorities, but it was the Local Government Association which particularly asked to be reassured about engagement, so this remains a live issue. He said that the lump sum of up to, I think, £3,500 would be paid in the circumstances he mentioned. I had understood from briefing that that was only for the pilot period of four months. Could he let me know after today if that is correct?

Finally, the noble and learned Lord mentioned Migrant Help. There have been a lot of tales over the last few months of people in hotels who have asked for some help from the contract providers who run the hotels or from other staff, and been told, “Oh, go and ask Migrant Help”. I do not think that it is quite the smooth process that was just suggested. However, I beg leave to withdraw the amendment.

Amendment 58 withdrawn.

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[Baroness Helic (Con)]

My Lords, I support Amendments 59, 63, 64 and 67. I believe these are measured and proportionate steps to preserve existing safeguards around child detention—safeguards introduced by a Conservative Government.

Child detention must only ever be a last resort. That is a clear requirement, as many have said, of Article 37 of the UN Convention on the Rights of the Child, which also requires that detention be for the shortest appropriate time. Article 22 requires states to ensure that children seeking refugee status receive “protection and humanitarian assistance”. I hope and believe that these principles will be recognised and shared across your Lordships’ Committee.

There is strong evidence that the mental and physical health impacts of detention on children are severe. For refugee children, often escaping from traumatic circumstances, detention can further compound their trauma. Detention separates children from their peers, interrupts their education, exposes them to violence and denies them the safe, loving and supportive environment that children need to develop and thrive, and which is their right. Detention undermines parental authority and strains the parent-child relationship. This lasts well beyond the period of detention itself. Even short spells in detention can cause trauma and long-term mental health risks for children. When we detain refugee children, we should know that we are making their future lives and integration into society even harder.

My noble friends in government may have said that they recognise these impacts and do not want to detain children, but I am afraid that, as written, this is precisely what the Bill will do. My noble friend Lady Mobarik has explained the existing limits and how the Bill would change them. To reiterate: the detention powers in the Bill would apply to all migrant children and could see them routinely detained in any location for an indefinite period. This is simply not in line with the principle of child detention as a limited last resort.

We know that the immigration system is overstretched. As such, we can reliably expect every time limit and latitude granted to immigration officials by the Bill to be exploited to the full. Therefore, we must make certain that children’s rights and the limits on their detention are guaranteed in law. It is not good enough for my noble friend the Minister to say that child detention should be exceptional. The law must make it exceptional.

There are some problems which new laws can solve. There are other times when new laws will have no effect—or such serious side-effects that they are entirely disproportionate to the problem. If the Government do not feel that they can regulate immigration and asylum without locking up children for extended periods, that is indicative of a broken system. It is not a problem that is resolved by detaining children.

There is no evidence that the introduction of the existing limits on child detention have led to an increase in illegal immigration. There is no reason to think that removing these limits will improve the Government’s ability to control immigration and prevent the dangerous channel crossings. Exposing children to greater risk of harm, with no guarantee of preventing harm, is not a step we should accept.

The existing limits on child detention, brought in after careful consideration by the Conservative Government, meet the practical need that sadly exists. They ensure that detention is strictly controlled and time-limited, as the UN Convention on the Rights of the Child requires. They mitigate the harm that detention causes. They make detention the last resort. That is what we must retain, and I urge noble Lords to support these amendments.

[Baroness Hamwee (LD)]

I remember well when the detention of children was ended by legislation. I visited Cedars, the property—I do not like the term “facility” in this connection—near Gatwick that was used for two or three days before the removal of families who were going to be removed and were at the end of the argument, if you like. What was particularly notable to me were the facilities for the children, and the support that was given to them, who were accommodated there for a very short time, to help them prepare to go back to a country that they may or may not have remembered—indeed, that they may not have ever lived in. It suffused the whole place and was really admirable. You only had to walk into the place to see the equipment and toys, and the information that was set out, as well as the work being done by social workers to support the children concerned. There were no families there at that point; the property used to allow visitors only on days when it knew that no families would be in residence.

I have a number of amendments in this group. The first is Amendment 59A, which seeks to probe the “discretion” given to the Secretary of State in making regulations regarding the detention of unaccompanied children. Amendment 64A is a similar amendment. The reason for my tabling this amendment is to understand whether the envisaged discretion can be exercised to extend the circumstances specified in an earlier part of the clause or to narrow those circumstances.

I discovered a possible answer to this when looking at my next amendment, Amendment 61B, which would provide for the affirmative procedure. Amendment 64C is a similar amendment. I tabled this amendment out of pure instinct that there should be an affirmative procedure, not a negative one. I subsequently discovered that the Delegated Powers and Regulatory Reform Committee, with considerably more logic than I bring to the matter, recommended the affirmative procedure. I quote its report:

“The Memorandum explains that the negative procedure is considered appropriate because ‘the effect of any regulations is to limit the circumstances in which an unaccompanied child may be detained or the duration of detention for the purposes of removal’. In our view, this explanation is misconceived”.


That is very much committee speak for, “We really disagree”. The report went on:

“The regulation making power can only be viewed as a limiting power from the perspective of the Bill as introduced into the House of Commons which conferred an unfettered power to detain unaccompanied children”.


However, amendments were then made in the Commons, so

“no such unfettered power of detention exists in the Bill as introduced into the House of Lords. It is the regulations alone which will specify the circumstances in which unaccompanied children will be capable of being detained, in the absence of which there is no power to detain such children. Given the importance and sensitivity of the subject matter, we consider that the affirmative resolution procedure should apply”.

As I say, the committee approached this with considerably more logic and power than I was planning to bring to it.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Monday 5th June 2023 Lords Chamber

[Lord Kerr of Kinlochard (CB)]

My question is even more simple: where is the impact assessment? I think the purpose of impact assessments is to inform the legislative decision. We hear that there will be an impact assessment and it will be produced shortly, but it seems unlikely to be produced while this Bill is being considered in this House. I think that is rather insulting, particularly as the Government rest their intellectual case on the deterrent effect. They say that the numbers will go down as word gets about of how people are to be treated, what “inadmissibility” means and how it is to be applied.

I am strongly against that on legal grounds—I think we should honour our international commitments—and humanitarian grounds, but it is impossible just to consider this argument on its merits if we cannot see the assumptions underlying the Government’s judgment of the impact. The questions from the noble Lord, Lord Coaker, are all extremely apposite and I look forward to the answers to them, but it seems to me that in relation to the deterrent effect, the impact assessment—wherever it is, whenever we will see it—will have to consider why people leave their home country and seek asylum far away. Why are they coming here? Will they be deterred by talk of us getting more brutal? We are going to get more brutal if we pass this Bill, but we are not going to get half as brutal as the conditions of the countries from which they are fleeing—75% of those seeking asylum in this country are found by the processes to have a well-founded fear of death or persecution back home.

Talk of pull factors is all nonsense: it is all about push factors. They are fleeing from horrors, from famine, from massacre, from murder and from war. It is difficult to see the deterrent factor as likely to be to be large, given the scale of the factors that are bringing about the flow. The impact assessment may prove me wrong. Certainly, the Government should, if they have the courage of their convictions, produce the evidence and the assumptions that underlie these convictions, and they should do it before we finish considering the Bill.

[Baroness Hamwee (LD)]

My Lords, does the noble Lord agree that one of the underlying provisions that we should know about is the safe and legal routes that we are told will deal with any number of people? Situations change so fast. I am not sure we had quite started the Bill when Sudan flared up as it did. There is an awful lot we need to know in order to know how the Bill will work.

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[Lord Hannay of Chiswick (CB)]

My Lords, I support the amendments in this group because they are at the heart of whether or not we are acting in conformity with our obligations under the UN Convention on the Rights of the Child, which I believe we are not. The noble Baroness, Lady Lister, has most helpfully brought to our attention the view of the committee set up to watch over the application by all 192 members of the UN to the Convention on the Rights of the Child. Its view is negative.

I am well aware that the United Nations does not have any enforcement powers in this matter—sadly, perhaps—but that does not mean that the British Government, which is usually a member of the UN in good standing and good faith, can simply ignore the views of the committee that was set up to watch over this legislation. To do so will have quite serious consequences in a much wider field, because there are plenty of members of the United Nations who shelter behind the lack of enforceability of the UN, whether it is in the Security Council or elsewhere, to do things that we, quite rightly, condemn outright, whether in Ukraine, the Taiwan Strait or wherever. The cost to this country of simply riding roughshod over our obligations under the UN Convention on the Rights of the Child is therefore quite serious.

The Minister will no doubt remind us that the UN Convention on the Rights of the Child is not incorporated into our domestic law. That is correct, but it was ratified by this country. How do we know that it was ratified, and how do we know that it covers all the provisions which this legislation is at variance with? Because we made two or three rather small, explicit reservations from the UN Convention on the Rights of the Child, none of which is relevant to the present matters we are debating—they relate to enrolment in the Armed Forces, education and so on. We accepted all the rest, and we ratified it and told the United Nations that we were going to apply all the rest. Now, we are going back on that.

I hope the Minister will not simply tell us that his opinion and that of the Home Office is that we are not infringing any of these obligations. I do not honestly think that that cuts any ice at all. I would be delighted if he would take, one by one, the articles cited by the noble Baroness, Lady Lister, and my noble friend Lord Kerr of Kinlochard, and explain why he has a different interpretation of those provisions. I say that more in hope than expectation, because the Minister does not seem to like answering specific questions of that sort. However, I hope on this occasion he will overcome his reluctance to do that and will address these problems. The UN Convention on the Rights of the Child is a serious matter. It is bringing better conditions for children worldwide. It is being used as an instrument to strike down all sorts of discrimination, and here we are building up new sorts.

[Baroness Hamwee (LD)]

My Lords, I have two amendments in this group. I, and we on these Benches, agree with pretty much everything that has been said, and with the specific amendments, including the first, introduced very succinctly by the noble Baroness, Lady Meacher.

I shall go back almost to the beginning of the debate. I do not come from a Conservative family—rather far from it, in fact; they were good News Chronicle-reading Liberals from Manchester—but they would have agreed with everything that the noble and learned Baroness said. I wonder whether, like me, she finds it particularly offensive that when the issue of the best interests of the child are raised, what the Government so often say is, “Of course we observe the best interests of the child. Of course we always take the best interests into account”, even to the extent, I may say, of sometimes saying that in immigration law best interests are paramount, which sadly they are not—not quite.

Amendment 18, also about unaccompanied children, would address the position—this seems to be a bit of a minnow compared with some of the points that have been made—when the Secretary of State has not been able to make arrangements with her, as I am bound to say, or his self-imposed duty to remove someone within six months, or, in the case of a child who arrives unaccompanied, within six months after the child has ceased to be unaccompanied. The Government must face up to what should happen if the Secretary of State sets herself a duty and then does not comply with it. This amendment would provide for regulations to except these cohorts. Though Parliament obviously could not amend the regulations, at least it would provide for the position.

--- Later in debate ---

Thirdly, there is the naivety of the Government in suggesting that people could assist the prosecutions by doing it from another country. We do not have enough prosecutions. The main way to deal with modern slavery is to prosecute the traffickers—those abroad who come here or can be found, and those who are in this country. There has been some success—but a limited success because you have to have witnesses to give the evidence. Even today there is not enough evidence given by witnesses, who are slow to come forward. I have to ask the Government: do they really think that if somebody is sent to another country against their will, having been already traumatised by being a victim of slavery, they are going to help the Government who deported them to deal with their traffickers? It seems extremely unlikely. On those three points, I strongly support what is going on now.

[Baroness Hamwee (LD)]

My Lords, whenever there is a reference to the ouster of the courts and tribunals in the context of this Bill, I think how ironic it is that we heard from the Government that they cannot give a certificate of compatibility with the Human Rights Act because it has not been tested by the courts.

Here again, it seems to me that we are conflating modern slavery and trafficking with immigration. That is misconceived and it is immoral. My name is on a number of the amendments of the noble Lord, Lord Hunt—not all of them, but this was due to the nature of the process, not any disregard of those amendments. An awful lot of organisations were continuing to suggest amendments pretty much as we walked into the Chamber.

The concern about this is very widespread. The amendments in this group are going in the same direction. Everyone who has spoken shares a concern about victims being scapegoated and their positions not understood. I have so much admiration for people such as the Filipino—I assume a domestic servant—the young man mentioned by the noble Lord, Lord Carlile. What people manage to do with their lives after the experiences they have gone through leaves me almost lost for words and feeling huge responsibility to try to do my best for them, even if it is not a very good best. We heard earlier today about the arrangements that the Government have for returns. The very fact that the Government have recently been negotiating with Moldova, Bulgaria and I do not know who else, about co-operation to prevent trafficking—I think it is trafficking and not just, if you can use the word “just”, smuggling—indicates the Government’s clear awareness that this is all happening. But negotiation is not a result.

The Government must not ignore that asylum seekers smuggled in are very vulnerable to exploitation as a result of the Government’s own policies. I may, at some other time, if I can and if she will allow me, quote the very apt and succinct description by the noble and learned Baroness, “escape does not mean exit”. People have said this at greater lengths during proceedings on this Bill, but that really does sum it up.

Not for the first time, those of us who have added our names to the amendment in the name of the noble Lord, Lord Dubs, seem to be a little band who work together. I will not repeat everything that has been said, but the Secretary of State sets rules for other people—in this case, very vulnerable people—so there must be consequences if the Secretary of State does not observe or fails the rules she has set.

The British Red Cross and others have been very clear about the effect of limbo on physical and mental health. It is not surprising that people now disappear into the black economy, exploitation and destitution. They must feel that they are being treated as if they are not human. Limbo should not be indefinite. I do not know how the provisions fit with the Home Office’s own guidance that the inadmissibility process, which currently does apply in some circumstances, must not create a lengthy limbo where delaying means the claimant cannot advance his or her protection claim.

Clause 4(3) deals with claims which are declared inadmissible. I ask again: what data will be published about claims which have been declared to be inadmissible? Can the Minister confirm that the Home Office will publish details, particularly the numbers, of declarations of inadmissibility? I cannot see that they will be regarded as claims which are refused because they never get to the stage of being considered. It is essential that we know how this Bill is working—if that is the right way to describe how the Bill, and maybe an Act, will proceed.

[Baroness Jones of Moulsecoomb (GP)]

My Lords, I signed the intention to oppose the Question that Clause 4 stand part of the Bill.

I do not often say anything good about this Government but they do, at times, think outside the box. They really do think up novel practices and novel moves in all sorts of areas. I admire massively the people who have gone through this Bill and put amendments forward. Sometimes I have time to do that myself on Bills. This particular clause is so bad—how can we improve it? There are two particularly dangerous proposals, which we have already heard. The first is that the courts will not be able to pause or prevent a deportation, even where that deportation will be clearly unlawful. Secondly, the Government can, by diktat, declare a person’s human rights as inadmissible. Where does that come from? Who thought that up? It is just incredibly creative. As it is novel practice, it is also dangerous. A precedent is being set that the Government can simply rule that some people do not have any human rights and that a Government can act unlawfully without any intervention from the courts. Human rights are for everyone—which is something this Government seem to forget—or they are not human rights. The courts must be allowed to protect those rights against the Government.

We have to stop this illegal Bill. I see no option but to start voting out chunks of it. If we can possibly intervene at the end, we should vote all of it down.

Illegal Migration Bill

Baroness Hamwee Excerpts

Committee stage
Wednesday 24th May 2023 Lords Chamber

[Baroness Chakrabarti (Lab)]

I heap plaudits on the shoulders of the noble Lord, Lord Carlile of Berriew. That was worthy of a legal lecture. I hope the noble Lord, Lord Wolfson, caught his plane, but that was a common-sense lesson in the law spoken with a great deal of humility. I will not call it a lecture because it was too humble and too articulate for that. I associate myself with all those remarks. I have signed only some of the amendments, but I am happy to endorse all the amendments that are against retrospection in the Bill. Our position on retrospection comes from common decency, common sense and common law before we get anywhere near ECHR obligations and other international obligations. Do not change the rules after the game has begun.

I notice that the noble Lord, Lord Hodgson of Astley Abbotts, is back in his place. He is a great one for the Clapham omnibus. I think this idea of changing the rules half way through the game is something that anyone on the Clapham omnibus or any lay person anywhere in our country would completely understand, and that is why all the amendments tabled by the noble Lord, Lord Carlile, are so important. It is profoundly unfair to say to people who are already in this country, who have already come to claim asylum, whether they will eventually succeed in their claims or not, should be subject to this new, punitive, retrospective regime.

The noble Lord, Lord Carlile, is clear and articulate, but he is also forensic because there are some extreme situations in which retrospection is permissible and even I would support retrospection. The famous one is marital rape. We know that once upon a time in our country it was not considered rape for a man to rape his wife. That position was changed in the courts in relation to a particular case. This had been brewing for some time. People thought the law was out of step with contemporary views on equal treatment of women and what is acceptable even within marriage. That was changed in a single case in which a man was successfully prosecuted for raping his wife. He took his claim all the way to the European Court of Human Rights in Strasbourg, and the court said no, this rape is so profoundly contrary to our international accepted norms that in this case we will accept that retrospection did not offend the common decency principle that you should not punish people retrospectively.

That is the kind of case we are talking about, in which it is acceptable to do that—not in this context. These are very vulnerable, desperate people. Whatever the views of noble Lords in this Committee about the acceptability of this regime, and we will disagree about that, in my view and that of many Members, as we have heard today, applying this to people who came here in good faith, and in many cases in desperation, on the understanding that the refugee convention would be applied in one way, is punitive and discriminatory, contrary to the convention. Retrospection adds insult to injury. I hope the Committee will not accept it and will instead support all the amendments that deal with retrospection in the name of the noble Lord, Lord Carlile of Berriew.

[Baroness Hamwee (LD)]

My Lords, I am glad to have been able to add my name to the noble Lord’s amendments. I am grateful to him for introducing them so clearly. I am conscious that my name is among those of noted advocates in different contexts.

We are already in an Alice in Wonderland—although I am not sure it is really a wonderland—world, where we are told that asylum seekers will know enough about UK restrictions and provisions to be deterred from trying to get here. I do not recognise that proposition. Added to that is the idea that people who are already here should have known what is in the Bill even before most MPs had an opportunity to pick up a copy of it.

The noble Lord referred to legislation coming into effect when it gets Royal Assent. Yes, of course it does, but very often—almost invariably—in a limited way. Some clauses come into effect, usually the jurisdiction and that type of thing, but many of the provisions and most of the legislation that we deal with have to wait for secondary legislation: that is, the provisions that implement what is in the primary legislation.

I absolutely agree with what has been said about certainty, clarity, predictability and so on. This Bill displays a casual attitude, which goes against not only legal principles but, as I think has been said, common decency. If I were to ask the Minister what is so compelling about the Bill that it should be an exception to all this, I have no doubt that I would be told, “We’ve got to stop the boats”.

As the noble Lord just said, the Nationality and Borders Bill—now Act—had the same policy objective, yet the channel crossings kept on rising and they have gone on rising. If I wanted evidence that retrospectivity had an effect in practical terms, I would have expected to find that they had come down in number since 7 March—but they have not.

I have two amendments in this group; my noble friend Lady Bakewell of Hardington Mandeville also has her name to the first of these, Amendment 9, which proposes to leave out Clause 2(7). Subsection (7) provides that

“limited leave to enter or remain given”

to an unaccompanied child “is to be disregarded”. It says, in effect that, for the purposes of Clause 3(1), we are to disregard what has already happened. It is another bit of retrospectivity. What use is the leave that is referred to in Clause 2(7)? To disregard it is unprincipled. Such leave should be taken into account in determining whether a child has leave to enter or remain; the Government have given it.

I will raise a point that the noble Baroness, Lady Finlay, the noble and learned Baroness, Lady Butler-Sloss, and myself, were discussing during the dinner break—it justifies our having had a dinner break, I think—and that is the question of adoption. I have not seen the comment made by the Children’s Commissioner, which no doubt the noble Baroness, Lady Finlay, will talk about, but I understand it suggests that, in the case of a child who has been adopted, and who falls within the provisions of the Bill as currently set out, that adoption in some way could be undone, despite the fact that the child has become a member of a British family.

I would have thought that the four conditions would not have been met, but we must be absolutely clear about this. If someone with the credentials of the Children’s Commissioner suggests that there is an issue here, we must have an absolutely clear statement from the Dispatch Box that that is not so and, preferably, an amendment from the Government making it clear that it is not so.